Transcript of "The E-2 Treaty Investor NIV is a Very Narrow Bridge to an EB-5 Greencard"

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The E-2 Treaty Investor NIV is a Very
Narrow Bridge to an EB-5 Greencard
By Joseph P. Whalen (August 4, 2014)
I. Introduction to the E-2 Nonimmigrant Visa1
The nonimmigrant visa (NIV) pathway to lawful permanent resident (LPR) status2
can be a clear possibility in some cases. It depends on what kind of NIV one possesses3
to determine which way to proceed, if at all possible. For an immediate relative (IR) of a4
United States citizen (USC), even a B-2 “Tourist Visa” can be a stepping stone. This is5
extremely well known to Consular Officers and that is why they may give some folks a6
really hard time or just flat out deny them over and over again. Certain NIVs carry7
with them a “dual intent” found in the statute which allows one to have a clear intent to8
become an LPR but that fact alone will not be used as a reason to deny the NIV. In9
particular and best know are the “H” specialty occupation worker and “L” intracompany10
transferee classifications, and their family members, which are very frequently stepping11
stones to employment-based (EB) immigrant visas. The “V” and “K” classifications are12
also express exceptions to immigrant intent being a “no-no” but in the realm of family-13
based (FB) visas which is beyond the reach of this essay.14
The “E” NIV is defined in the statute as follows:15
(E) an alien entitled to enter the United States under and in pursuance of the provisions of a treaty of16
commerce and navigation between the United States and the foreign state of which he is a national, and the17
spouse and children of any such alien if accompanying or following to join him;18
(i) solely to carry on substantial trade, including trade in services or trade in technology,19
principally between the United States and the foreign state of which he is a national;20
(ii) solely to develop and direct the operations of an enterprise in which he has invested, or of an21
enterprise in which he is actively in the process of investing, a substantial amount of capital; or22
(iii) solely to perform services in a specialty occupation in the United States if the alien is a23
national of the Commonwealth of Australia and with respect to whomthe Secretary of Labor24
determines and certifies to the Secretary of Homeland Security and the Secretary of State that the25
intending employer has filed with the Secretary of Labor an attestation under section 1182(t)(1)1
26
of this title… [8 U.S.C.]…; [Underlining added for emphasis]27
INA § 101(a)(15)(E) [8 U.S.C. § 1101(a)(15)(E)].28
In the present discussion, I am solely addressing the E-2, Treaty Investor NIV29
classification specifically defined in INA § 101(a)(15)(E)(ii) [8 U.S.C. § 1101(a)(15)30
1
8 U.S.C. § 1182 is equivalent to INA § 212 General classes of aliens ineligible to receive visas and ineligible for
admission; waivers of inadmissibility.

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(E)(ii)] which is highlighted above. That classification is further addressed in the31
implementing regulations. Of particular note is the following:32
(e) Treaty traders and investors—33
(2) Treaty investor. An alien, if otherwise admissible, may be classified as a nonimmigrant treaty investor34
(E-2) under the provision of section 101(a)(15)(E)(ii) of the Act if the alien:35
(i) Has invested or is actively in the process of investing a substantial amount of capital in a bona36
fide enterprise in the United States, as distinct froma relatively small amount of capital in a37
marginal enterprise solely for the purpose of earning a living;38
(ii) Is seeking entry solely to develop and direct the enterprise; and39
(iii) Intends to depart the United States upon the expiration or termination of treaty investor (E-2)40
status.41
* * * * *42
(5) Nonimmigrant intent. An alien classified under section 101(a)(15)(E) of the Act shall maintain an43
intention to depart the United States upon the expiration or termination of E-1 or E-2 status. However, an44
application for initial admission, change of status, or extension of stay in E classification may not be denied45
solely on the basis of ………….a filed or approved immigrant visa preference petition. [Emphasis added]46
8 CFR § 214.2 Special requirements for admission, extension, and maintenance of status.47
II. Introduction to the EB-5 Immigrant Visa1
The journey to obtain an immigrant investor visa or the fifth-preference2
employment-based visa, better known as “EB-5”, starts with the filing of an immigrant3
visa preference petition, specifically USCIS Form I-526, Immigrant Petition by4
Alien Entrepreneur. The goal in filing that I-526 is to obtain the acknowledgement from5
USCIS that the potential immigrant investor meets the bare minimum statutory6
requirements in order to be classified as an EB-5 immigrant investor. Such an approved7
petition does not provide any tangible immigration benefit. It merely provide a8
classification label and a priority date for later visa issuance or adjustment of status9
purposes, if otherwise eligible, and deemed admissible as an immigrant to the United10
States. The statute describes the employment creation immigrant as follows, at INA11
§ 203(b)(5) [8 U.S.C. § 1153(b)(5)]:12
(5) Employment creation [*Attorney General has been replaced by Secretary of DHS]13
14
(A) In general15
Visas shall be made available, in a number not to exceed 7.1 percent of such worldwide level,16
to qualified immigrants seeking to enter the United States for the purpose of engaging in a new17
commercial enterprise (including a limited partnership)—18
(i) in which such alien has invested (after November 29, 1990) or, is actively in the process19
of investing, capital in an amount not less than the amount specified in subparagraph (C), and20
(ii) which will benefit the United States economy and create full-time employment for not21
fewer than 10 United States citizens or aliens lawfully admitted for permanent residence or22
other immigrants lawfully authorized to be employed in the United States (other than the23
immigrant and the immigrant's spouse, sons, or daughters).24

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(B) Set-aside for targeted employment areas25
26
(i) In general27
Not less than 3,000 of the visas made available under this paragraph in each fiscal year shall28
be reserved for qualified immigrants who invest in a new commercial enterprise described in29
subparagraph (A) which will create employment in a targeted employment area.30
(ii) “Targetedemployment area” defined31
In this paragraph, the term“targeted employment area” means, at the time of the investment,32
a rural area or an area which has experienced high unemployment (of at least 150 percent of the33
national average rate).34
(iii) “Rural area” defined35
In this paragraph, the term“rural area” means any area other than an area within a36
metropolitan statistical area or within the outer boundary of any city or town having a37
population of 20,000 or more (based on the most recent decennial census of the United States ).38
(C) Amount of capital required39
(i) In general40
Except as otherwise provided in this subparagraph, the amount of capital required under41
subparagraph (A) shall be $1,000,000. The *Attorney General, in consultation with the42
Secretary of Labor and the Secretary of State, may from time to time prescribe regulations43
increasing the dollar amount specified under the previous sentence.44
(ii) Adjustment for targeted employment areas45
The Attorney General may, in the case of investment made in a targeted employment area,46
specify an amount of capital required under subparagraph (A) that is less than (but not less than47
½ of) the amount specified in clause (i).48
(iii) Adjustment for high employment areas49
In the case of an investment made in a part of a metropolitan statistical area that at the time50
of the investment—51
(I) is not a targeted employment area, and52
(II) is an area with an unemployment rate significantly below the national average53
unemployment rate, the Attorney General may specify an amount of capital required54
under subparagraph (A) that is greater than (but not greater than 3 times) the amount55
specified in clause (i).56
(D) Full-time employment defined57
In this paragraph, the term“full-time employment” means employment in a position that58
requires at least 35 hours of service per week at any time, regardless of who fills the position.59
[Underlining added for emphasis]60
From the statute we can see that the bare-bones minimum is to demonstrate61
having the required capital and showing that the minimum number of jobs has been62
created or the alien’s efforts “will …. create full-time employment for not fewer than 10…63
[U.S. workers]…authorized to work in the United States…” If 10 jobs have not yet been64
created, then, out of simple necessity, a plan to create them is to be presented. That65
practical notion was made mandatory through regulations which were reinforced and66
explained in the 1998 AAO Precedent Decision: Matter of Ho, infra. In Ho, the AAO67
described the essential elements for an acceptable EB-5 business plan.68

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In the next portion of this essay, I will compare and contrast some of the common69
similar and differing elements and eligibility criteria between the immigrant70
entrepreneur or investor visa and nonimmigrant investor visa. Then the remainder71
of this essay will discuss how an E-2 treaty investor might need to proceed in order to72
eventually qualify to apply for the immigrant version of the entrepreneur or investor73
“employment creation” EB-5 visa. It may be interesting for the reader to also consider74
the differences between an investor and an entrepreneur. They are truly NOT75
synonymous in the normal, ordinary, everyday use and are clearly even more divergent76
when viewed through the “looking-glass” that is immigration law.77
III. Comparing and Contrasting Investor Eligibility Criteria1
Whether as an immigrant or nonimmigrant, all investments demand an infusion2
of “clean money”2 . The E-2 investor is required to demonstrate that (s)he “[h]as3
invested or is actively in the process of investing a substantial amount of capital in a4
bona fide enterprise in the United States, as distinct from a relatively small amount of5
capital in a marginal enterprise solely for the purpose of earning a living…” 8 CFR §6
214.2(e)(2)(i). The EB-5 investor, on the other hand, is required to demonstrate that7
(s)he “…has invested or is actively in the process of investing lawfully obtained capital8
in a new commercial enterprise in the United States which will create full-time9
positions for not fewer than 10 qualifying employees. ….” 8 CFR § 204.6(j). Let’s10
dissect those two basic statements. They are similar but distinct as you will see.11
2
Safeguards are in-place to prevent E-2 or EB-5 investments to be used to launder criminal proceeds or money
associated with any kind of fraudulent and/or unsavory activity (“dirty money” or “tainted money”).

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E-2 Nonimmigrant Investor EB-5 Immigrant Investor
Invest a “substantial” amount of capital….. “Invest” a minimum prescribed amount of
“lawfully obtained” “capital”
In a bona fide enterprise…… In a “new commercial enterprise” in the United
States
Distinct from a relatively small amount in a
marginal enterprise solely for the purpose of
earning a living.
Which will create “full-time” positions for not
fewer than 10 “qualifying employees”.
Develop and direct the operations of an
enterprise.
Engage in a “new commercial enterprise”
(including a limited partnership).
The differences may or may not jump out at you as you read about those two12
classifications from the statutes and regulations shown above this table, but they are13
substantially different as will become clearer. This is especially true when it comes to14
evidence that must be produced. If the reader wishes to devote more time to the15
differences, I suggest seeking out the definitions to some of the terms used in the16
statutes, the implementing regulations, 9 FAM, EB-5 Precedents, or better yet--all of17
them, especially for the terms in quotation marks in the above table. There is only one18
generally “defined” term for the E-2 treaty investor but many more for the EB-519
classification and what is shown here is only the tip of this iceberg. I will not spend too20
much time on that aspect in this essay as it is meant only as a general introduction.21
The E-2 investor most often deals initially and primarily with the U.S.22
Department of State (DOS or State Department) at a Consulate or Embassy in their23
home country and as such must provide evidence as laid out in the Foreign Affairs24
Manual (FAM), as opposed to the USCIS regulations, specifically 9 FAM 41.513 and its25
accompanying Notes4 are what control the vast majority of E-2 processing. The State26
Department regulations are found at 22 CFR Subpart F—Business and Media Visas §27
3
SEE: http://www.state.gov/documents/organization/87219.pdf
4
SEE: http://www.state.gov/documents/organization/87220.pdf

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41.51, entitled “Treaty trader, treaty investor, or treaty alien in a specialty occupation”.28
The E-2 Treaty Investor is specifically addressed in 22 CFR § 41.51:29
(b) Treaty investor—30
(1) Classification. An alien is classifiable as a nonimmigrant treaty investor (E-2) if the consular31
officer is satisfied that the alien qualifies under the provisions of INA 101(a)(15)(E)(ii) and that32
the alien:33
(i) Has invested or is actively in the process of investing a substantial amount of capital in34
bona fide enterprise in the United States, as distinct froma relatively small amount of35
capital in a marginal enterprise solely for the purpose of earning a living; and36
(ii) Is seeking entry solely to develop and direct the enterprise; and37
(iii) Intends to depart from the United States upon the termination of E'2 status.38
(2) Employee of treaty investor. An alien employee of a treaty investor may be classified E-2 if the39
employee is in or is coming to the United States to engage in duties of an executive or supervisory40
character, or, if employed in a lesser capacity, the employee has special qualifications that make41
the services to be rendered essential to the efficient operation of the enterprise. The employer must42
be:43
(i) A person having the nationality of the treaty country, who is maintaining the status of44
treaty investor if in the United States or, if not in the United States, who would be45
classifiable as a treaty investor; or46
(ii) An organization at least 50% owned by persons having the nationality of the treaty47
country who are maintaining nonimmigrant treaty investor status if residing in the United48
States or, if not residing in the United States, who would be classifiable as treaty49
investors.50
(3) Spouse and children of treaty investor. The spouse and children of a treaty investor51
accompanying or following to join the principal alien are entitled to the same classification as the52
principal alien. The nationality of a spouse or child of a treaty investor is not material to the53
classification of the spouse or child under the provisions of INA 101(a)(15)(E).54
(4) Representative of foreign information media. Representatives of foreign information media55
shall first be considered for possible classification as nonimmigrants under the provisions of INA56
101(a)(15)(I), before consideration is given to their possible classification as nonimmigrants under57
the provisions of INA 101(a)(15)(E) and of this section.58
(5) Treaty country. A treaty country is for purposes of this section a foreign state with which a59
qualifying Treaty of Friendship, Commerce, and Navigation or its equivalent exists with the60
United States. A treaty country includes a foreign state that is accorded treaty visa privileges under61
INA 101(a)(15)(E) by specific legislation (other than the INA).62
(6) Nationality of the treaty country. The authorities of the foreign state of which the alien claims63
nationality determine the nationality of an individual treaty investor. In the case of an64
organization, ownership must be traced as best as is practicable to the individuals who ultimately65
own the organization.66
(7) Investment. Investment means the treaty investor's placing of capital, including funds and other67
assets, at risk in the commercial sense with the objective of generating a profit. The treaty investor68
must be in possession of and have control over the capital invested or being invested. The capital69
must be subject to partial or total loss if investment fortunes reverse. Such investment capital must70
be the investor's unsecured personal business capital or capital secured by personal assets. Capital71
in the process of being invested or that has been invested must be irrevocably committed to the72
enterprise. The alien has the burden of establishing such irrevocable commitment given to the73
particular circumstances of each case. The alien may use any legal mechanismavailable, such as74
by placing invested funds in escrow5
pending visa issuance, that would not only irrevocably75
5
Legacy INS borrowed many concepts fromthe State Department’s treatment of the Treaty Investor when writing
the original EB-5 regulations*. The concept and use of escrow in EB-5 derives fromhere but was not specifically
adopted in the EB-5 regulations. It does survive as a practical matter and is widely used in EB-5 investments.
See also: http://eb5info.com/system/documents/219/original/Original_INS_View_of_Employment_Creation_Immigrants.pdf?1334072298

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commit funds to the enterprise but that might also extend some personal liability protection to the76
treaty investor.77
(8) Bona fide enterprise. The enterprise must be a real and active commercial or entrepreneurial78
undertaking, producing some service or commodity for profit and must meet applicable legal79
requirements for doing business in the particular jurisdiction in the United States.80
(9) Substantial amount of capital. A substantial amount of capital constitutes that amount that is:81
(i)82
(A) Substantial in the proportional sense, i.e., in relationship to the total cost of83
either purchasing an established enterprise or creating the type of enterprise84
under consideration;85
(B) Sufficient to ensure the treaty investor's financial commitment to the86
successful operation of the enterprise; and87
(C) Of a magnitude to support the likelihood that the treaty investor will88
successfully develop and direct the enterprise.89
(ii) Whether an amount of capital is substantial in the proportionality sense is understood90
in terms of an inverted sliding scale; i.e., the lower the total cost of the enterprise, the91
higher, proportionately, the investment must be to meet these criteria.92
(10) Marginal enterprise. A marginal enterprise is an enterprise that does not have the present or93
future capacity to generate more than enough income to provide a minimal living for the treaty94
investor and his or her family. An enterprise that does not have the capacity to generate such95
income but that has a present or future capacity to make a significant economic contribution is not96
a marginal enterprise. The projected future capacity should generally be realizable within five97
years from the date the alien commences normal business activity of the enterprise.98
(11) Solely to develop and direct. The business or individual treaty investor does or will develop99
and direct the enterprise by controlling the enterprise through ownership of at least 50% of the100
business, by possessing operational control through a managerial position or other corporate101
device, or by other means.102
(12) Executive or supervisory character. The executive or supervisory element of the employee's103
position must be a principal and primary function of the position and not an incidental or collateral104
function. Executive and/or supervisory duties grant the employee ultimate control and105
responsibility for the enterprise's overall operation or a major component thereof.106
(i) An executive position provides the employee great authority to determine policy of107
and direction for the enterprise.108
(ii) A position primarily of supervisory character grants the employee supervisory109
responsibility for a significant proportion of an enterprise's operations and does not110
generally involve the direct supervision of low-level employees.111
(13) Special qualifications. Special qualifications are those skills and/or aptitudes that an112
employee in a lesser capacity brings to a position or role that are essential to the successful or113
efficient operation of the enterprise.114
(i) The essential nature of the alien's skills to the employing firm is determined by115
assessing the degree of proven expertise of the alien in the area of operations involved,116
the uniqueness of the specific skill or aptitude, the length of experience and/or training117
with the firm, the period of training or other experience necessary to performeffectively118
the projected duties, and the salary the special qualifications can command. The question119
of special skills and qualifications must be determined by assessing the circumstances on120
a case-by-case basis.121
(ii) Whether the special qualifications are essential will be assessed in light of all122
circumstances at the time of each visa application on a case-by-case basis. A skill that is123
unique at one point may become commonplace at a later date. Skills required to start up124
an enterprise may no longer be essential after initial operations are complete and are125
running smoothly. Some skills are essential only in the short-term for the training of126
locally hired employees. Long-termessentiality might, however, be established in127
connection with continuous activities in such areas as product improvement, quality128
control, or the provision of a service not generally available in the United States.129
(14) Labor disputes. Citizens of Canada or Mexico shall not be entitled to classification under this130
section if the Secretary of Homeland Security and the Secretary of Labor have certified that:131

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(i) There is in progress a strike or lockout in the course of a labor dispute in the132
occupational classification at the place or intended place of emp loyment; and133
(ii) The alien has failed to establish that the alien's entry will not affect adversely the134
settlement of the strike or lockout or the employment of any person who is involved in135
the strike or lockout.136
INA § 101(a)(45) [8 U.S.C. § 1101(a)(45)] provides this vague statutory definition-137
The term “substantial” means, for purposes of paragraph (15)(E)138
with reference to trade or capital, such an amount of trade or139
capital as is established by the Secretary of State, after140
consultation with appropriate agencies of Government.141
The “substantial amount” that must be invested; or “irrevocably committed” when one is142
still “actively in the process of investing”, is a relative amount rather than a specific143
amount. There is no exact dollar amount stated as a minimum (or maximum) BUT the144
“relative” or “proportional” amount must be demonstrated to be realistic and145
appropriate to the business context involved in that particular case and above all else, be146
reasonable. See also 9 FAM 41.51 N10.1-N10.5.147
In sharp contrast to the E-2 investor, the EB-5 investor has a mandated specific148
minimum investment amount. That amount is actually an amount first set by Congress149
in the Immigration Act of 1990 (IMMACT90). The minimum levels are stated at INA §150
203(b)(5)(C)(i-ii) [8 U.S.C. § 1153(b)(5)(C)(i-iii)]. The statute gives the executive151
department in charge of implementing this program the authority to make adjustments152
to the minimum investment amount, through its regulations. INS and subsequently153
USCIS have not done so yet. The EB-5 investment has a basic statutory (and a matching154
regulatory) one-million dollar threshold BUT in a specially defined “targeted155
employment area” (TEA) that amount is cut in half. While either type of investor (NIV156
or IV) is checked out as to the general lawfulness of funds invested, the EB-5 investor157
has more rigid standards. In other words, the immigrant investor’s “hoops-to-jump-158
through” are more numerous and narrower (so extremely narrow that sometimes those159

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hoops may feel more like nooses). In addition to the tighter scrutiny, the immigrant160
investor must prove that all the funds are his or her own personal funds; no unsecured161
loan proceeds count; and retained earnings from the “new commercial enterprise” don’t162
count either. Also, while “gifted” funds are allowed for nonimmigrant and immigrant163
investors, the burden to demonstrate the path and source of those “gifted” funds is164
shifted to the “gift-giver” for EB-5 visa purposes6 but the FAM does not explicitly impose165
the same stringent restriction on the E-2 investor. The nonimmigrant investor may166
include unsecured loan proceeds as part of their initial investment and may use167
retained earnings to grow their business, it merely won’t count for EB-5 immigrant168
visa classification purposes. These two points are probably the worst roadblocks169
encountered when an E-2 wants to pursue an EB-5 greencard. Even when there are no170
issues about the source of the E-2 investors funds, the paper trail may not have been sufficiently171
documented from day one. That situation might or might not be insurmountable for the E-2172
seeking an EB-5 visa. It will be case specific as to which “evidence” can be gathered during the173
“EB-5 paper chase” along the “E-2 paper trail”.174
Another potential pitfall for the E-2 who later decides to try for an EB-5175
greencard is the purchase of an existing business. This approach is allowed for the E-2176
and is unfettered. Things are not at all “unfettered” for the EB-5 immigrant177
entrepreneur or investor in an existing business. The EB-5 visa has a cut-off date for the178
establishment of any existing business being purchased for it to meet the definition of a179
“new” “commercial enterprise”. If the established business qualifies as a “troubled180
business” (as defined) then the existing jobs can be included in the required 10 jobs to181
be created as long as all the existing jobs are preserved and if that total is less than182
6
See 8 CFR § 204.6(e) for definitions of Capital and Invest and see Matter of Soffici, 22 I&N Dec.158 (AAO 1998).

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10 then additional positions must be added in order to bring the total up to 10 per EB-5183
investor. If the pre-existing business is not “troubled” then, as long as it was established184
after the cut-off date, then it can be either expanded by 40 percent in total number of185
jobs, Soffici, infra, or in total net worth as calculated by Generally Accepted Accounting186
Principles (GAAP), or restructured. “A petitioner engaging in the reorganization or187
restructuring of a pre-existing business may not cause a net loss of employment.” See188
Hsiung, infra. As per 8 CFR § 204.6(h)“The establishment of a new commercial189
enterprise may consist of … (2) [t]he purchase of an existing business and simultaneous190
or subsequent restructuring or reorganization such that a new commercial enterprise191
results…” [Emphases added.]192
The AAO attempted to explain the concept of “restructuring” in one of the 1998193
Precedent Decisions in this manner:194
“Although Ames Management was incorporated in 1997, it is the job-195
creating business that must be examined in determining whether a new196
commercial enterprise has been created. The Howard Johnson’s Motor197
Lodge purchased by Ames Management had been in operation for approx-198
imately 24 years and was an ongoing business at the time of purchase;199
Ames Management, doing business as Howard Johnson Hotel, has merely200
replaced the former owner.201
The petitioner has provided no documentation whatsoever to establish202
that the Howard Johnson’s was a “troubled business,” as defined above,203
prior to his purchase. He also does not claim that he will expand the hotel204
by 40 percent as provided in 8 C.F.R. § 204.6(h)(3). The petitioner has not205
shown the degree of restructuring and reorganization required by 8 C.F.R. §206
204.6(h)(2); the hotel has always been a Howard Johnson and is still a207
Howard Johnson today. A few cosmetic changes to the decor and a new208
marketing strategy for success do not constitute the kind of restructuring209
contemplated by the regulations, nor does a simple change in ownership.210
Therefore, it cannot be concluded that the petitioner has created a new com-211
mercial enterprise.” Soffici at 166.212

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The AAO EB-5 Precedent Decisions of 1998:
Matter of Ho, 22 I&N Dec.206 (AAO 1998)
Matter of Hsiung, 22 I&N Dec.201 (AAO 1998)
Matter of Izummi, 22 I&N Dec.169(AAO 1998)
Matter of Soffici, 22 I&N Dec.158 (AAO 1998)
Each of the above Administrative Precedent Decisions stands for certain key concepts and makes a valiant
effort to explain them. Terrible mistakes were made in the investments discussed in these cases. Please study
the past mistakes of others in order to avoid repeating them. While most people involved in EB-5 are new,
EB-5 itself is not new. EB-5 has a history! Please read the above linked I&N Decisions. Use caution in EB-5.
IV. Case Example of a Failed Conversion from E-2 to EB-51
A recent AAO non-precedent found at: JUL022014_01B7203.pdf features an E-22
treaty investor who was unable to qualify for an EB-5 visa due to some issues relating to3
that alien investor’s path and source of funds and an unlikely ability for the business to4
create sufficient jobs for EB-5 purposes. The key document for an EB-5 Direct5
Investment, which incidentally, means herein that it is not in any way affiliated with6
an approved USCIS designated Regional Center, is the Matter of Ho-compliant7
business plan. The “Direct” investor cannot count any indirect or induced jobs and8
must establish a true employer-employee relationship with ten (10) qualified9
employees. The fact that no indirect or induced jobs count for a “Direct Investment”10
means two things to me.11
First, unless completed for some specific legitimate business reason, such as12
supporting investment in the venture in the first place or to draw in a partner, then no13
economic impact report is needed (USCIS probably won’t even look at it because it14
is irrelevant to meeting the EB-5 job creation requirements).15

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Secondly, it would be wise to use E-Verify in the “new commercial enterprise”16
which is most likely also the “job-creating enterprise”7 because USCIS runs E-Verify17
and will likely check all EB-5 direct employees anyway. It should be remembered that18
for the EB-5 classification, many more terms are specifically defined in both the statute19
and regulations and explained further via Precedents. Some of those very few defined20
terms used in the E-2 context are not defined the same as for EB-5 if defined at all for21
the E-2 nonimmigrant investors. The DOS regulations “discuss” rather than “define”.22
While common sense tells us that if one is investing in a business that they will23
have a plan for that business, the nonimmigrant investor does not have to have a formal24
written business plan and even if they do, there are no specific demands as to its format25
or content. DOS’ 9 FAM 41.51 N11 only calls for the enterprise to “not” be marginal.26
Marginal, in this context, means that the business would only be enough for the27
investor to earn a minimal (or even “comfortable”) living for self and family. That28
enterprise does not have to be a “goldmine” or an “overnight success” either. In general,29
the E-2 enterprise needs to show promise of success within five years (as a rule of30
thumb). EB-5 investors, conversely, get a two-year conditional period to create and then31
show the required job creation and proper expenditure of the full minimum required32
capital investment amount. The E-2 investor is allowed to have much more of their33
money sitting idle or rather “standing-by” in a bank account or even a certificate of34
deposit (CD). The idleness of funds in the EB-5 context was thoroughly addressed in the35
U.S. District Court case of Al-Humaid v. Roark, et. al., No. 3:09-CV-982-L (N.D. TX36
(Dallas) January 26, 2010). I suggest reading that case closely.37
7
Some folks are touting the “Loan Model” in the EB-5 Direct Investment realm, however, I don’t see it as a viable
option; and even if someone could make it acceptable, I think it is impractical and too difficult to make it work.

13.
Contact: joseph.whalen774@gmail.com (716) 604-4233 or (716) 768-6506 Page 13
The immigrant investor has another dimension to consider. The EB-5 visa is38
codified in the Immigration and Nationality Act (INA) as a preference visa category.39
That category or classification is defined in INA § 203(b)(5) [8 U.S.C. § 1153(b)(5)]40
which is entitled “Employment Creation”. If the immigrant investor has not yet created41
a minimum of ten (10) permanent full-time jobs for qualifying work authorized U.S.42
workers at the time of filing their I-526 petition, then they must submit a43
comprehensive, detailed, and credible formal Business Plan that meets the44
requirements spelled out in the Administrative Precedent Decision: Matter of Ho, 2245
I&N Dec. 206 (AAO 1998). Such an endeavor cannot be barely above “marginal” which46
is the minimum for an E-2 enterprise; because it simply will never be accepted as an EB-47
5 “new commercial enterprise” (NCE). USCIS knows that basic fact and would never48
approve any I-526 petition that relied on a substandard and/or highly speculative49
business plan to create a marginal commercial enterprise. These and other50
considerations that don’t apply to the E-2 investor are difficult to remedy late in the51
game. That means that IF an E-2 nonimmigrant investor even has a thought of ever52
seeking an EB-5 visa in their head; they will have to take special and/or corrective53
actions very early on. There are many service providers out there that will offer the E-254
investor help in planning for the EB-5 conversion. I am one of them, call me or e-mail a55
detailed message. In closing, please heed these words: “E-2 Businesses do not56
"automatically" convert to EB-5 qualifying investments.” (That is a direct57
quote, of me, from me to you!). It takes much advance planning, data tracking, evidence58
collection, and some unorthodox actions in order to be prepared to seek an EB-5 visa in59
the future.60
That’s my two cents, for now!61

14.
Contact: joseph.whalen774@gmail.com (716) 604-4233 or (716) 768-6506 Page 14
About the Author
Joseph P. Whalen, Independent EB-5 Consultant,
Advocate, Trainer & Advisor
238 Ontario Street | No. 6 | Buffalo, NY 14207
Phone: (716) 604-4233 or (716) 768-6506
E-mail: joseph.whalen774@gmail.com
web http://www.slideshare.net/BigJoe5 or
http://eb5info.com/eb5-advisors/34-silver-surfer
DISCLAIMER: Work is performed by a non-attorney independent business
consultant and de facto paralegal. It is the client's responsibility to have any and all
non-attorney work products checked by an attorney. I provide highly-
individualized training based on consultation with my clients. I serve Regional
Center Principals and their counsel, potential EB-5 investors, immigration attorneys,
and project developers. I am not an attorney myself although I have trained numerous
attorneys and INS/USCIS adjudicators in complex issues within immigration and
nationality law when I was an adjudicator there for many years. I do not prepare forms,
write business plans, or create economic analyses. I do review them for clients
prior to submission and suggest corrections and/or modifications to run by
your attorney and investment advisor.
NOTE: I have over a decade of experience as an adjudicator for INS and
USCIS and direct EB-5 Regional Center Adjudications experience having
been instrumental in reviving, greatly enhancing, and expanding the EB-5
Regional Center Program for USCIS.
NAICS Code: 611430 Professional and Management Development Training
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